[Federal Register Volume 77, Number 118 (Tuesday, June 19, 2012)]
[Proposed Rules]
[Pages 36457-36460]
From the Federal Register Online via the Government Printing Office [www.gpo.gov]
[FR Doc No: 2012-14733]
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DEPARTMENT OF THE INTERIOR
Fish and Wildlife Service
50 CFR Part 17
[Docket No. FWS-R4-ES-2009-0022; 4500030114]
RIN 1018-AX68
Endangered and Threatened Wildlife and Plants; Designation of
Critical Habitat for the Coqu[iacute] Llanero
AGENCY: Fish and Wildlife Service, Interior.
ACTION: Proposed rule; reopening of comment period.
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SUMMARY: We, the U.S. Fish and Wildlife Service, announce the reopening
of the public comment period on the October 12, 2011, proposed
designation of critical habitat for the coqu[iacute] llanero
(Eleutherodactylus juanariveroi) (a tree frog) under the Endangered
Species Act of 1973, as amended (Act). We are reopening the comment
period to allow all interested parties an opportunity to comment on the
proposed rule, our evaluation of the potential economic impacts of the
proposed designation, and the amended required determinations section.
Comments previously submitted need not be resubmitted, as they will be
fully considered in preparation of the final rule.
DATES: The comment period for the proposed rule that published on
October 12, 2011, at 76 FR 63420, is reopened. We will consider
comments received on or before July 19, 2012. Comments must be received
by 11:59 p.m. Eastern Time on the closing date. Any comments that we
receive after the closing date may not be considered in the final
decision on this action.
ADDRESSES: You may submit written comments by one of the following
methods:
(1) Electronically: Go to the Federal eRulemaking Portal: http://www.regulations.gov. Search for Docket No. FWS-R4-ES-2009-0022, which
is the docket number for this rulemaking.
(2) By hard copy: Submit by U.S. mail or hand-delivery to: Public
Comments Processing, Attn: FWS-R4-ES-2009-0022; Division of Policy and
Directives Management, U.S. Fish and Wildlife Service, 4401 N. Fairfax
Drive, MS 2042-PDM, Arlington, VA 22203.
FOR FURTHER INFORMATION CONTACT: Marelisa Rivera, Deputy Field
Supervisor, Caribbean Ecological Services Field Office, P.O. Box 491,
Road 301 Km 5.1, Boquer[oacute]n, Puerto Rico 00622, by telephone 787-
851-7297, extension 206, or by facsimile 787-851-7440. Persons who use
a telecommunications device for the deaf (TDD) may call the Federal
Information Relay Service (FIRS) at 800-877-8339.
SUPPLEMENTARY INFORMATION:
Public Comments
We will accept written comments and information during this
reopened comment period on our proposed designation of critical habitat
for the coqu[iacute] llanero (an endemic Puerto Rican tree frog) that
was published in the Federal Register on October 12, 2011 (76 FR
63420), our evaluation of potential economic impacts of the proposed
designation, and the amended required determinations provided in this
document. We will consider information and recommendations from all
interested parties. We are particularly interested in comments
concerning:
(1) Additional information concerning the historical and current
status, range, distribution, and population size of this species,
including the locations of any additional populations of this species.
(2) Any information on the biological or ecological requirements of
the species and ongoing conservation measures for the species and its
habitat.
(3) Biological, commercial trade, or other relevant data concerning
any threats (or lack thereof) to this species and regulations that may
be addressing those threats.
(4) Current or planned activities in the areas occupied by the
species and possible impacts of these activities on this species.
(5) The reasons why areas should or should not be designated as
critical habitat as provided by section 4 of the Act (16 U.S.C. 1531 et
seq.), including the possible risks or benefits of designating critical
habitat, including risks associated with publication of maps
designating any area on which this species may be located, now or in
the future, as critical habitat.
(6) Specific information on:
(a) The amount and distribution of habitat for the coqu[iacute]
llanero;
(b) What areas, which were occupied at the time of listing (or are
currently occupied) and that contain the physical and biological
features essential to the conservation of this species, should be
included in a critical habitat designation and why;
(c) Special management considerations or protection that may be
needed for the essential features in critical habitat areas, including
managing for the potential effects of climate change; and
(d) What areas not occupied at the time of listing are essential
for the conservation of this species and why.
(7) Information on the projected and reasonably likely impacts of
changing environmental conditions resulting from climate change on the
species and its habitat.
(8) Any probable economic, national security, or other relevant
impacts of designating any area that may be included in the final
designation; in particular, any impacts on small entities or families,
and the benefits of including or excluding areas that exhibit these
impacts.
(9) Information on the extent to which the description of probable
economic impacts of the proposed critical habitat designation is
complete and accurate.
(10) Information on whether the benefits of an exclusion of any
particular area may outweigh the benefits of its inclusion under
section 4(b)(2) of the Act.
(11) Whether our approach to designating critical habitat could be
improved or modified in any way to provide for greater public
participation and understanding, or to assist us in accommodating
public concerns and comments.
If you submitted comments or information on the proposed rule (76
FR 63420) during the initial comment period from October 12, 2011, to
December 12, 2011, please do not resubmit them. We have incorporated
them into the public record, and we will fully consider them in the
preparation of our final determination, which will take into
consideration all written comments and any additional information we
receive during both comment periods. On the basis of public comments,
we may, during the development of our final determination, find that
areas proposed are not essential, are appropriate for exclusion under
section 4(b)(2) of the Act, or are not appropriate for exclusion.
You may submit your comments and materials by one of the methods
listed in the ADDRESSES section. We request that you send comments only
by the methods described in the ADDRESSES section.
If you submit a comment via http://www.regulations.gov, your entire
comment--including any personal identifying information--will be posted
on the Web site. We will post all hardcopy comments on http://www.regulations.gov as well. If you submit a hardcopy comment that
includes personal identifying information, you may request at the top
of your document that we withhold this information from public review.
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However, we cannot guarantee that we will be able to do so.
Comments and materials we receive, as well as supporting
documentation we used in preparing the proposed rule and our evaluation
of probable economic impacts of the proposed designation, will be
available for public inspection on http://www.regulations.gov at Docket
No. FWS-R4-ES-2009-0022, or by appointment, during normal business
hours, at the U.S. Fish and Wildlife Service, Caribbean Ecological
Services Field Office (see FOR FURTHER INFORMATION CONTACT).
Background
It is our intent to discuss only those topics directly relevant to
the designation of critical habitat for the coqu[iacute] llanero in
this document. For more information on previous Federal actions
concerning the coqu[iacute] llanero, refer to the joint 12-month
petition finding, proposed listing of the species as endangered, and
the proposed designation of critical habitat published in the Federal
Register on October 12, 2011 (76 FR 63420, which is available online at
http://www.regulations.gov at Docket Number FWS-R4-ES-2009-0022) or
from the Caribbean Ecological Services Field Office (see FOR FURTHER
INFORMATION CONTACT).
Previous Federal Actions
On October 12, 2011, we published a proposed rule to list the
coqu[iacute] llanero as endangered and to designate critical habitat
(76 FR 63420). We proposed to designate approximately 615 acres (ac)
(249 hectares (ha)) in one unit located in Sabana Seca Ward, Toa Baja,
Puerto Rico, as critical habitat. That proposal had a 60-day comment
period, ending December 12, 2011. We will submit for publication in the
Federal Register a final critical habitat designation for the
coqu[iacute] llanero on or before October 12, 2012. We received no
requests for a public hearing, and, therefore, we will not hold any
public hearings as part of this rulemaking.
Critical Habitat
Section 3 of the Act defines critical habitat as the specific areas
within the geographical area occupied by a species, at the time it is
listed in accordance with the Act, on which are found those physical or
biological features essential to the conservation of the species and
that may require special management considerations or protection, and
specific areas outside the geographical area occupied by a species at
the time it is listed, upon a determination that such areas are
essential for the conservation of the species. If the proposed rule is
made final, section 7 of the Act will prohibit destruction or adverse
modification of critical habitat by any activity funded, authorized, or
carried out by any Federal agency. Federal agencies proposing actions
affecting critical habitat must consult with us on the effects of their
proposed actions, under section 7(a)(2) of the Act.
Consideration of Impacts Under Section 4(b)(2) of the Act
Section 4(b)(2) of the Act requires that we designate or revise
critical habitat based upon the best scientific data available, after
taking into consideration the economic impact, impact on national
security, or any other relevant impact of specifying any particular
area as critical habitat. We may exclude an area from critical habitat
if we determine that the benefits of excluding the area outweigh the
benefits of including the area as critical habitat, provided such
exclusion will not result in the extinction of the species.
When considering the benefits of inclusion for an area, we consider
the additional regulatory benefits that area would receive from the
protection from adverse modification or destruction of critical habitat
as a result of actions with a Federal nexus (activities conducted,
funded, permitted, or authorized by Federal agencies), the educational
benefits of mapping areas containing essential features that aid in the
recovery of the listed species, and any benefits that may result from
designation due to State or Federal laws that may apply to critical
habitat.
When considering the benefits of exclusion, we consider, among
other things, whether exclusion of a specific area is likely to result
in conservation; the continuation, strengthening, or encouragement of
partnerships; or implementation of a management plan. In the case of
the coqu[iacute] llanero, the benefits of critical habitat include
public awareness of the presence of the coqu[iacute] llanero and the
importance of habitat protection, and, where a Federal nexus exists,
increased habitat protection for the coqu[iacute] llanero due to
protection from adverse modification or destruction of critical
habitat. In practice, situations with a Federal nexus exist primarily
on Federal lands or for projects undertaken by Federal agencies.
We have not proposed to exclude any areas from critical habitat.
However, the final decision on whether to exclude any areas will be
based on the best scientific data available at the time of the final
designation, including information obtained during the comment period
and information about the potential economic impact of designation.
Accordingly, we have evaluated the potential economic impact of the
proposed critical habitat designation. A discussion of the potential
economic impacts follows.
Evaluation of Potential Economic Impacts
Section 4(b)(2) of the Act and its implementing regulations require
that we evaluate the probable economic impacts that may result from a
designation of critical habitat, and to take into consideration these
impacts when evaluating whether to exclude any particular area from a
final critical habitat designation. To assess the potential economic
impacts of a designation, we must first evaluate the impacts of
restricting or modifying specific land uses or activities for the
benefit of the species and its habitat within the proposed critical
habitat area. We then identify which conservation efforts may be the
result of the species being listed under the Act versus those
attributed solely to the designation of critical habitat. The economic
impact of a proposed critical habitat designation is analyzed by
comparing scenarios both ``with critical habitat'' and ``without
critical habitat.'' The ``without critical habitat'' scenario
represents the baseline for the analysis, considering protections
already in place for the species (e.g., under the Federal listing as
well as other Federal, State, and local regulations). The baseline,
therefore, represents the costs of all efforts to conserve the species
and its habitat incurred regardless of whether critical habitat is
designated. The ``with critical habitat'' scenario describes the
incremental impacts associated specifically with the designation of
critical habitat for the species. The incremental conservation efforts
and associated impacts are those not expected to occur absent the
designation of critical habitat for the species. In other words, the
incremental costs are those attributable solely to the designation of
critical habitat, above and beyond the baseline costs; these are the
costs we may consider in the final designation of critical habitat when
evaluating the benefits of excluding particular areas under section
4(b)(2) of the Act.
In our evaluation of the potential economic impacts that may result
from the proposed designation of critical habitat for the coqu[iacute]
llanero, first we identified, in an Incremental Effects Memorandum
dated October 12, 2011, potential incremental costs associated with the
following categories of activity:
(1) Species and habitat management; (2) residential, commercial, or
industrial
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development; (3) agriculture; (4) construction of new, or maintenance
of, roads and highways; (5) maintenance (including vegetation removal
or alteration) of drainage ditches; (6) construction or maintenance of
recreational facilities; (7) construction and maintenance of
telecommunication towers; (8) renewable wind power energy; (9) gas
pipeline; (10) closure of landfill; and (11) transfer of Federal lands
(Navy).
In this memorandum, the Service attempted to clarify the difference
between the jeopardy and adverse modification standards for the
coqu[iacute] llanero critical habitat. Because the designation of
critical habitat for coqu[iacute] llanero is being proposed
concurrently with the listing, it is more difficult to discern which
conservation efforts are attributable to the species being listed and
those which will result solely from the designation of critical
habitat. However, the following specific circumstances in this case
help to inform our evaluation: (1) The essential physical and
biological features identified for critical habitat are the same
features essential for the life requisites of the species, (2) the
current range of the coqu[iacute] llanero is limited to the specific
area identified as critical habitat, and (3) any actions that may
affect the species or its habitat would also affect designated critical
habitat. The Incremental Effects Memorandum outlines our rationale
concerning this limited distinction between baseline conservation
efforts and incremental impacts of the designation of critical habitat
for this species. This evaluation of the incremental effects has been
used as the basis to evaluate the potential incremental economic
impacts of this proposed designation of critical habitat.
On the basis of our evaluation of the potential incremental
effects, we have determined that almost all conservation-related
efforts and activities will result from the protections afforded the
species through State and Federal law once the species is federally
listed. In other words, specific actions or efforts, or project
modifications that may be recommended to conserve the species or its
habitat, would be recommended because the species is protected under
both State and Federal law. While it has been suggested (Vermont Law
School, 2012) that the proposed Via Verde pipeline would adversely
affect the coqu[iacute] llanero and its proposed critical habitat, at
this time the proposed alignment is not anticipated to cross or affect
the habitat of the coqu[iacute] llanero. Only in those cases where an
action may affect the designated critical habitat and there is a
Federal nexus (i.e., a Federal agency that is authorizing, funding, or
permitting the action) would there be the additional requirement that
the Federal action agency evaluate whether the action may adversely
modify the designated critical habitat. This additional analysis by the
Federal action agency is considered to be an incremental effect of the
designation. While this additional analysis will require time and
resources by both the Federal action agency and the Service, it is
believed that, in most circumstances, these costs would predominantly
be administrative in nature and also would not be significant. Because,
in this circumstance, we believe that the incremental impacts of the
designation, and therefore the potential economic impacts, would be
limited to these administrative actions, we have determined that this
rule will not result in a significant economic impact in any given year
or result in a disproportionate economic impact to any particular
sector.
Required Determinations--Amended
In our October 12, 2011, proposed rule (76 FR 63420), we indicated
that we would defer our determination of compliance with several
statutes and executive orders until we had evaluated the potential
economic impacts of the designation and potential effects on landowners
and stakeholders. Following our evaluation of the potential incremental
economic impacts resulting from the designation of critical habitat for
the coqu[iacute] llanero, we have amended or affirmed our
determinations below. Specifically, we affirm the information in our
proposed rule concerning Executive Order (E.O.) 12866 (Regulatory
Planning and Review), E.O. 13132 (Federalism), E.O. 12988 (Civil
Justice Reform), E.O. 13211 (Energy, Supply, Distribution, and Use),
the Unfunded Mandates Reform Act (2 U.S.C. 1501 et seq.), the Paperwork
Reduction Act of 1995 (44 U.S.C. 3501 et seq.), the National
Environmental Policy Act (42 U.S.C. 4321 et seq.), and the President's
memorandum of April 29, 1994, ``Government-to-Government Relations with
Native American Tribal Governments'' (59 FR 22951). However, based on
our evaluation of the potential economic impacts of the proposed
designation of critical habitat for coqu[iacute] llanero, we are
amending our required determination concerning the Regulatory
Flexibility Act (5 U.S.C. 601 et seq.).
Regulatory Flexibility Act (5 U.S.C. 601 et seq.)
Under the Regulatory Flexibility Act (RFA; 5 U.S.C. 601 et seq.),
as amended by the Small Business Regulatory Enforcement Fairness Act of
1996 (SBREFA; 5 U.S.C. 801 et seq.), whenever an agency is required to
publish a notice of rulemaking for any proposed or final rule, it must
prepare and make available for public comment a regulatory flexibility
analysis that describes the effects of the rule on small entities
(i.e., small businesses, small organizations, and small government
jurisdictions). However, no regulatory flexibility analysis is required
if the head of the agency certifies the rule will not have a
significant economic impact on a substantial number of small entities.
The SBREFA amended the RFA to require Federal agencies to provide a
certification statement of the factual basis for certifying that the
rule will not have a significant economic impact on a substantial
number of small entities.
When evaluating the potential effects of a proposed rulemaking on
small entities, the RFA only requires that the agency analyze the
potential impacts to directly affected entities. However, where
practicable, the RFA recommends also evaluating the potential impacts
to indirectly affected entities as well. To determine if the proposed
designation of critical habitat for the coqu[iacute] llanero would
affect a substantial number of small entities, we must first evaluate
whether any small entities may be directly affected by the designation.
The designation of critical habitat for an endangered or threatened
species only has a regulatory effect under section 7 of the Act where a
Federal action agency is involved in a particular action that may
affect the designated critical habitat. Under these circumstances, only
the Federal action agency is directly affected by the designation, and,
therefore, the requirements of the RFA allow for the Service to limit
its evaluation of the potential impacts to only the Federal action
agencies. There is no further requirement under the RFA to evaluate the
potential impacts to indirectly affected entities, such as small
businesses, organizations, or governments. As a consequence, we have
determined that the proposed designation of critical habitat for the
coqu[iacute] llanero would not directly affect small entities.
Based on this determination, we certify that, if promulgated, the
proposed critical habitat designation would not have a significant
economic impact on a substantial number of small
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business entities. Therefore, an initial regulatory flexibility
analysis is not required.
Authors
The primary authors of this notice are the staff members of the
Caribbean Ecological Services Field Office, Southeast Region, U.S. Fish
and Wildlife Service.
Authority
The authority for this action is the Endangered Species Act of
1973, as amended (16 U.S.C. 1531 et seq.).
Dated: June 6, 2012.
Eileen Sobeck,
Acting Assistant Secretary for Fish and Wildlife and Parks.
[FR Doc. 2012-14733 Filed 6-18-12; 8:45 am]
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